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The document discusses the meaning, nature, and scope of public administration, highlighting its importance in governmental operations and the execution of public policies. It presents various definitions of public administration from different scholars, emphasizing its role in managing public agencies and services for the community. Additionally, it explores the integral and managerial views of public administration, noting the ongoing debates regarding its scope and characteristics.
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0% found this document useful (0 votes)
105 views24 pagesPublic Administration BSS-315
The document discusses the meaning, nature, and scope of public administration, highlighting its importance in governmental operations and the execution of public policies. It presents various definitions of public administration from different scholars, emphasizing its role in managing public agencies and services for the community. Additionally, it explores the integral and managerial views of public administration, noting the ongoing debates regarding its scope and characteristics.
Uploaded by
rajkomal261Copyright
© © All Rights Reserved
We take content rights seriously. If you suspect this is your content, claim it here.
Available Formats
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/ 24
PUBLIC
ADMINISTRATION
By
S. Polinaidu
2010
@ Galgotia Publications Pvt. Ltd.
5, Ansari Road, Daryaganj, New Delhi-110 002
Ph. : 23263334, 23288134 Fax : 23281909
E-mail: [email protected] ie
Pubic Adminitaig
1, MEANING, NATURE AND SCOPE OF
PUBLIC ADMINISTRATION
‘ne of amination in sich sock. ctl role consis in the pro be
epee pce chen application of science and technolog 3
sn rica of over ine developing cones engage tenons
Gener independence of the state aul sucial and economic welf edb
we ea lepend upon the effective and efficient fence
dministration is so important * naturale
aoe 2 ee
ene
creer on a it
eine ‘meaning of the term administration befor
rc mec ta pn oe
12 Meaning of Administra sherk
‘The English 2 es on ¥
raat word Administer’ is derived from a combination of ip
Lain woh a =
af = nina Wich Wee
Inthe wes of EN. Gaden,“aSrastaity foot
Cat sens wor bt i bu eee
PSI Ww minage altars Hee a ce
esas “determin
Adminstration je a aso Purpose.”
Suet NALA ornate
aa Re mee alse
which is inerent in any
ven in sucha simple activity
‘a simple activity
it neither could have moved
i MOL mutually invo ak
ides those Eel ‘that concern ‘single
Sone In this cxampuc yt
Endeavour, Adminstaion soy
individual, eg one me
Introduction
to accomplish a common goal. Thus,
is, what it is not.
“According to George E. Berkley, admit
People:
iy Action; people have 10 do.doing something bef
(ity Interaction; administration i
GEE —_—_"™_"— °& ©...
3
‘we can understand what administration
nitration is
because without the presence.of people there can Be 0
fore administration can _
center the
js people interacting with other-people 0
ity is an essential pat ofall administration
js a universal process that can De
accomplish tasks. Joint activi
fh as a business firm, a hospital, &
wie generic sense, ainstaton
ound in various institutional settings suc
All hese iserse orpenizatone
‘university, a government department
vse commonly
coordinating, et.) a8 well asthe bu
‘and soon.
"he mame administrative processes (eB. planning, organizing
* Fespective goals. Thus, administration is ne
“2 This view of administration disregards
rived end. I
re adininiaton i in question. In his sense the term minsration
Movers both public and private rgasizains.
1.3 Definitions of Administration
are quoted below:
Some ofthe important definition given by writers in public aminisranon
Gh) According to George E. Berkley, “.-.Adminisuation © b process
‘prowing human beings jointly engaged in working foward commoe
sols”
27 ber tek bees “Admin Ba 0 0 MR things
“Fae ith the accomplishment of defined objectives
7 ar A. Nig ne. "Aci ern and wse of
_/ gen-and materials to accomplish 2 purpose
or scot at of administration isthe direction
/
(4) According to LD. Whit sinistr rect
-acetnaton ad oatol of many persons © achieve some PuFPaSe OF
«administration as “The systematic ordering of
resources, aimed at making those
simultaneously preventing
(5) John A. Vieg defines
affairs and the calculated use of
‘which we want to happen and
~THngs happen 2
MIevelopments that fil 1 square with our intentions co
organization and use-of even
administeation sth
to achieve desired ends”
‘ministration is the 2
in common goals”
16) Prifner observes.
and (uaterial resourced
(7 Hebert Simon 335
coerting 1 acon
———————————EEEEEEE
rivities of groups, suf
. Public Adminisy
14 Meaning of Public Administration
In onder to understand the term public administration, we muse 4
‘arity of meanings, bat here it means ‘governmental’. Public adminisgy 0?
therefore. simpy means governmental administration that operates in gn
setting. Is focus is specifically on public ureaueracy. “As Nicho ee
BLThe study and practice of public bureaucracy is public adiainisee
"he pede Opals sno leds Special see
Wars a pai Admaseion hat is an agency ote pane
I concems the management of public agencies that carry out public pe
ox pie
inf sae porn ple meee, Sine ee
[ovades services for the people in the public interest, the adminis tt ona
‘Sevemmental affairs is known as public administration, “mun
«ATRIA Son Seu an Ton Poe anion et
. ‘270aps cooperating to accomplish the aia
Tuche 8 fish the common goals of
EES Soh es Eni dee wea ae
‘order, tection, wunicatic pen
“Punlic administration is potiey execution and also policy formulation”
mes. Wesker
2) “Public Administration:
(© is cooperative group effort in a public setting,
_ fi cours all tree branches—exeeutive, legislative, and judicial
(ov hand Oi iniemelationships,
(i) bas an iy lation of policy and is thus
‘ar of the political process,
(vs different in significant-weys-from private admi
fle nitration, and
(©) is closely associated with numerous private groups and individuals
‘in providing Services to the community.”
— FA. Nigro and L.G. Ni
fon ated byte Nips is asthe ofthe node
<7 nnn tees ee
1.6 Characteristics of Public Administration
mals of both the traditional an
Haan the adional and modern definitions of public
sara
Intodetion 7
eee ee ee te ee
It is merely a tool of government to implement its policies and provide
was services for the people at the minimum cost in order to attain
ee eae nn ae rae pea pea
Pe parce ee eon cee
ae ore poe see pea
sina
pent sh nr in oro tetra ld ee
Se yan apie cs: Ponty. sommes
ee
gu ie enbtocoete ic eis buna cca.
Oe mii pombe ind tae sce, whch bosom ll
‘pervasive. It has an applied nature focusing mainly on the problems of
society and polity.
49) Tis an ongoing. process. There is no end 10 it. If one activity is
Sa eae oa al caro
1L7 Administration, Organization and Management
‘The terms administration organization-and management are not
yoyo Tough cy we ine sah ter. they ae lsc) reed.
Seen tS dec eiesive Hission Hr lyr Ge the SBpcives sn
oliies- Organization is the structure forthe atainment of
2SrinseOR Ar Gearge EBerkiy as, “All amnion reqs an
aaa ot wane shige tae or and ad al oats cary one
Seber of nla sci
temp adios managements an exeuive
fusition, I is primarily concerned with carrying. Ov the Drow policics laid
“Goeny he timinsrot: Ao nd mae ea 9
sere a cqaizaion, Organon the ache Throogh whl
‘Rea aioe eblahe between wlmiisraon ad management Tha, he
eee admiisondon, rguzauon and management — ae
imcrelae
1a Natre of Plc Administration
gore qion pring tn ane oe nile
Ce eee enacmiamtive tuvnge? Tere oe woo
eliing to this question: The first is view And the secor
18.1 Integral view
‘According to the integral view, public administration is viewed a5 doing
the work of government, Administration is regarded asthe sum total of all the
\ , Public Adoninistration
aetivities manual, clercal. mental, technical ail managerial, whieh
undertaken to realize the objectines of publis policies, If we accept this view,
‘Trike astiics a pnerament employes fo the Poon 10 # remote ae:
to the secretaries to govemment ant head of a sate atthe capital conse
Pehle administration
\ stench supp of the integral view of adit
According to hm, “Puhcalmnstaton sons of
‘for thew purpose the fulfillment or enforcement of public policy.” Accor
hs almmsravo soters many operations performed by dient agent
government the Fels of Ia, josie, social Welfare, health, education’
Soest: 14 Gein Dink ar er import sappnen
_ASSetaee ofthe imegral view makes the si ic adminis
2SLand uviely bans nlades a hteropernnas saa
public administration
RERES TW SRS eet ogee eR Public aiistratges who ae
* consising of the manager fancions of
basic POSDCORE Tunciions of tn (Pann
SMMC, namely (I) Planing) Orono
ose < rsinating, (9) Reporting, and (2s fhe ’
‘Teta oy eos wet oe ce et 22 Baie
the noe-nanagerial’
nt tye emphasis on
Sos 2 tre of sina ee
vce? ake busing ke”
eit em, pb wnt Hen pulie ae
St nce a enya
‘managerial principles
te
Die Bese and op
ii
ater?
Introduction 9
and valves. The advocacy of businesslike public administration eventally
hecame the orthodox or clasical view of how the public service should be
Differences between integra and managerial views
The integral view differs frm the managerial view in certain respects.
The integral view is wider than the manaenal view. ‘The former presents an
allielusive view of administration. covering both managerial and non
aerial activities, while the later Fesircts administration 4 the work of
tmanagers only, i. directive and supervisory personnel. The distinction Between
ihe two views relates to the difference Between the operation and management.
or doing things and geting things done
_However, the integral and managerial views are not mutually
cath othe. Public amination s both a proces and a vocation. Az
“publica
taken inthe
with the management ofthe activites of others (ve reaming and directing)
ina pubic agency. 7052 "OF 6 weld gy UO OHO v ca
According to Pimock, “Administration concerned with “what” and ‘bow
the government. The “what” te wbject mar the technical Knowledge
Of. fied which enbles he adiname wo petorm hs sks? The
the technigue of magssement the panciples according 1o which cooperative
(worn a cred oo sac Each tdiapemabi,togetar they
foem the symthess called administration
9 Scope of Public Administration
By the scope of public administration is edn is oor inerets and
-sommtmen spine an an acti. It Poth subyect ot study and
“practice. Hence, the scope of pubic administration refers wo i Powndarics as
ivi). a set of institutions and subject of ty aaa
“Although public administration has more than a century of development,
there is no consensus among is wie aboot i meaning. nalure and scope
All hese have beome matters of much debate and controversy. The feason
is tha the fiekd of public administration features Neteradony rather than
‘onhodowy. This i because public administration i perhaps fast growing
discipline constanyealarging ts scope of interests and commitment.
However, for our purpose, the a Administration may —
convenicaly be analyze undee two beads (11 as. dciptine. and (2) ar a
activity as
11 The scope of public administration as a discipline
By a discipline, we mean a particular area of study such as_political
science, economics and sociology: Tn this semse, publi administration 1s also Public Administration
0
public adininstaion, as already stig,
aon, various writes have ex
be examined from differey
+ icp. aie ae ini
tacks consenrs ab ils Sop, Conewien. Ya
{ere opinions ons coe: Hee i SOD
PA ck ‘Gr and drial Meare Ht Fg
vice of the five key functional element lanning, (2)
administration ine
Sraamsing 2 Commanding (4) Coordinating (5) Controlling. PO CC¢,
dain ene POSDCORB forms, Glick dened seven function
clemensrening nanan, sting rein, cording, reporting ang
‘nua’ ns amon, hse elements stand for different branches ofthe
wShsct of atmmaaon ces wll be elaborated ite later in the book)
scowling tw? McQueen, he scope of admiisvation consists ofenly
thece factors, narbely mes, material and methods.
Tin his book “Principles of Public Administration” Willoughby divided the
sop of public adminsraton into the following five categories
TC) General administration, ie, who isto perform the function of
icc, seervson and contol ovr administration,
2) Organization, i=, building up of the structures for the actu
peviorance ofthe dminiative work
AS) Personnel, i, who are to manage iflerent services.
iy the tools with which the work o
administration is caried on. ok of
AS) Finance ie, determination of, and making provision fo, the i
‘needs of administration. This isthe crux of all ior
ae io I the above-mentioned
pti under two broad heads:
re me oi Fe of aan.) See of public administration.
Sina tes Peo Public aiministation nua tan part
‘dminiscalive theary and") applied ad a
that all the views on the scone sr
sdiminstratio canbe examined fn Go. leat
i that the scope of public
out the scope of public adminis a
sles. The different viewpoints
ge of ana eT
ace ie ‘ folons
the scope of public dma cite to some traditional writers
-Bovernment only, fa theis goin He Retivities of the executive —
—gciec i ga e
I is not given any role in te 8 the laws, made
FM. Marx, “Public administ eeave and Judici ere
“al functions. In the words of
Inuroduction n
practices and procedures essential forthe effective performance ofthe civil
Tunctions entrusted to the execvtive branch of th
‘An important support of Tater Gulick. This
administration is also shared by Simon, Smithburg and Thomson when they
‘aid: “By public administration is meant, in common usage, the activites of
the executive branches of the national, state and local governments.”
a
‘The modern breaer views Many male wrt hve jose te SOP
| traditional narrower view of public admisisiration as unduly restrictive as an”
‘explanation of its scope. Hence, they have identified public administration
“Wilh ig whole government in action, ie. the tivities of alle tee branches
of the government— legislature, exec 7
‘enor, pte Vrvucel tony Cae pace bl ap ar
their foro and als perform sone qasfadicFoocions Frcs,
he nature of administrative operations ae-GNSHIET aT Tape T> the natore
if ofa Tas) tats bythe psn ag wel he atereeon Brea
tem By te jciny. The lel ences contol ovr admieston
‘with a view to see that the policies are implemented as intended by jt, The
{jidiciagy has the power to restrain public administrators from unconstit
Moral ed shiva ce ig, joi i ining pal id
af public vices cya headers and unde’ what circumstances Leesatus>
“conclusion that all thee branches of government are part ofthe study and
practice of public administration.
‘Though the narrower view is widely accepted one, the broader view is
fast growing dyeamic Fld of
mow realise 9s it reflects the reality of (he fast growing dynamic Feld of )
Castes Public adminisTabon Vience the wider view of the scope of public
‘administration is acceptable to us in India.
‘The POSDCORB view: In the book “Papers on the Science of
“Administration” (1937), edited by Glick and Urwick, Gulick propounded the
POSDCORB view of the scope of public administration. In the 1930s, he
‘reated to acronym POSDCORB that contains the first leters of the following
seven elements of administration:
(1) Planning
(2) Organizing
@) Staffing
(4) Direct
(3) Coordinating
(©) Reporting Si
(D) Budgeting Public Administra
. ion
ceseven funationa elements oF branches of pug
Golick believed that thes
administration constitute is Scope
“The POSDCORB view. no doubt. gives
vo the sud oT
ty, certainty and definitenas
studyof public admiaistaigg
izations of the POSDCORB view
The POSDCORB view suffers from certain limitations
(1) This view is considered to be a narrow emphasis on the techniques of
‘administration only. The POSDCORB echaiques canbe neither the
esas mats bi aii noe he pai
STi They fail 0 give us the knovledge about the various fey,
Smimsrauve activity (6. police, education, health and agriculre)
‘which the POSDCORB techniques are applied. Intimate knowledge
‘ofthe subject matter with which an administrative agency is primaly
Concerned with is indispensable to an effective and intelligent
ministration.
(2) Much of administration concerns policies and programmes. But the
POSDCORE formula does nt cootain any zeference tothe formulation
‘sid implemealation of policies and programmes, For this reason,
4) ROSBCORE view is id be far fom ety. <
(3) The POSDCORB view ignores the human factor in administration,
